HomeMy WebLinkAbout2018 05 15 AIS for Marcola Meadows Final Master Plan ModificationAGENDA ITEM SUMMARY Meeting Date: 5/15/2018
Meeting Type: Work Session/Reg. Mtg
Staff Contact/Dept.: Andy Limbird, DPW
Staff Phone No: 541-726-3784
Estimated Time: 30 Minutes
S P R I N G F I E L D
PLANNING COMMISSION
Council Goals: Encourage Economic Development and
Revitalization through Community
Partnerships
ITEM TITLE: Marcola Meadows Final Master Plan Modification (Case 811-18-000054-TYP3)
ACTION
REQUESTED:
Conduct a public hearing and deliberations on proposed modifications to the Marcola Meadows
Final Master Plan, approved on July 16, 2008 (Case LRP2007-00028).
ISSUE
STATEMENT:
The Master Plan for the “Villages at Marcola Meadows” was approved in July 2008 and the
applicant is requesting to extend the eligible timeline for the Final Master Plan to July 2023.
Additionally, the applicant is proposing to amend the zoning for the property and to change the
phasing sequence and location from four phases to nine phases.
ATTACHMENTS: 1. Staff Report and Recommended Conditions of Approval for Final Master Plan Amendment
2. Application and Exhibits
3. Site Map
4. PC Final Order – Final Master Plan Amendment 811-18-000054-TYP3
DISCUSSION:
The Master Plan was approved on July 16, 2008 and recorded at Lane County Deeds & Records on
July 25, 2008. In accordance with Section 5.13-133.C.1 of the Springfield Development Code
(SDC), the Final Master Plan is effective for up to 7 years unless otherwise modified. Prior to
expiration of the Master Plan, the applicant submitted a modification request to extend the timeline
an additional three years to July 25, 2018 (Case TYP115-00031).
The applicant is requesting a Final Master Plan Modification to extend the timeline a maximum of
15 years from the date of final approval (to July 25, 2023) in accordance with SDC 5.13-135.B.9.
Additionally, in accordance with SDC 5.13-135.B.8, the applicant is proposing to change the
sequencing and configuration of development phasing from four phases to nine phases.
Staff has prepared a staff report and recommended conditions based on the review criteria found in
SDC Section 5.13-135.F (Attachment 1). The findings presented by staff provide a substantive
basis for approving, with conditions, the extended timeline and modified phasing sequence. Staff
also recommends distilling the 54 conditions of approval arising from the 2008 approval down to
the current list of 13 recommended conditions. The subject conditions would supersede the prior
list of 54 conditions upon approval and recordation of the modified Final Master Plan.
Public notification for this development proposal was sent to residents and property owners within
300 feet of the outer boundary of the Master Plan area on April 23, 2018 and the site was posted
with public hearing notices on April 26, 2018. Staff received several telephone calls and emails
inquiring about this development proposal but no written comments were received.
811-18-000054-TYP3 Final Master Plan Modification Page 1 of 13
Type III FINAL MASTER PLAN MODIFICATION,
staff report & RECOMMENDED CONDITIONS
Project Name: Marcola Meadows Final Master Plan Modification
Project Proposal: Modify the Marcola Meadows Final Master Plan to change the sequencing and configuration of
development phasing, amend the property zoning, and extend the timeline an additional five years to July, 2023
Case Number: 811-18-000054-TYP3
Project Location: Marcola Road at 28th Street
Assessor’s Map: 17-02-30-00, TL 1800 and
17-03-25-11, TL 2300
Zoning: Medium Density Residential (MDR),
Mixed Use Commercial (MUC) and
Community Commercial (CC)
Metro Plan Designation:
Commercial and Nodal Development
Application Submitted Date: Mar. 30, 2018
Planning Commission Public Hearing Date:
May 15, 2018
Associated Applications: LRP2007-00028 (Master Plan); TYP115-00031 (Type I Final Master Plan
Amendment); 811-18-000053-TYP3 (Zoning Map Amendment)
APPLICANT’S DEVELOPMENT REVIEW TEAM
Owner/Applicant:
Elliot Jensen
MidFirst Bank
3030 E Camelback Road
Phoenix AZ 85016
Applicant’s Representative:
Richard Satre
Schirmer Satre Group
375 West 4th Avenue, Suite 201
Eugene OR 97401
Project Engineer:
Lane Branch, PE
Branch Engineering Inc.
310 Fifth Street
Springfield OR 97477
CITY OF SPRINGFIELD’S DEVELOPMENT REVIEW TEAM
POSITION REVIEW OF NAME PHONE
Project Manager Planning Andy Limbird 541-726-3784
Transportation Planning Engineer Transportation Michael Liebler 541-736-1034
Civil Engineer Utilities Clayton McEachern 541-736-1036
Civil Engineer Sanitary & Storm Sewer Clayton McEachern 541-736-1036
Deputy Fire Marshal Fire and Life Safety Gilbert Gordon 541-726-2293
Building Official Building David Bowlsby 541-736-1029
SITE
Marcola Road 28th St 31st St Attachment 1, Page 1 of 13
811-18-000054-TYP3 Final Master Plan Modification Page 2 of 13
SITE INFORMATION
The property involved in this request is the 100-acre Marcola Meadows Master Plan area at the northwest corner of
Marcola Road and 28th Street (Map 17-02-30-00, Tax Lot 1800 & Map 17-03-25-11, Tax Lot 2300). The Master
Plan was approved by the Springfield Planning Commission on July 16, 2008 as Case LRP2007-00028. The Final
Master Plan was recorded at Lane County Deeds & Records on July 25, 2008. A tentative subdivision plan (Case
SUB2008-00036) for the Master Plan area was approved in September 2008, but has since expired. Additionally, a
tentative site plan (Case DRC2008-00068) for a Lowe’s home improvement store was approved in October, 2008,
but did not proceed past Final Site Plan submittal and is deemed expired. The applicant previously obtained
approval to extend the Final Master Plan timeline to July 25, 2018 pursuant to Case TYP115-00031. The Master
Plan area is vacant and zoned a combination of Medium Density Residential (MDR), Mixed Use Commercial
(MUC), and Community Commercial (CC). The Nodal Development Overlay District (/ND) applies to about 80.8
acres of the Master Plan area that is currently zoned MDR and MUC.
PROPOSED MODIFICATIONS
The Master Plan describes the development template for the Marcola Meadows project area, including the planned
residential, mixed-use, and commercial elements of the neighborhood; public street and utility network;
commercial site access and vehicle circulation patterns; stormwater management facilities; and phasing plan.
Master Plans are typically valid for a seven year period from the date of recordation, with provision for a one-time
extension of up to three calendar years using a Type I Final Master Plan amendment process in accordance with
Section 5.13-135.A.3 of the Springfield Development Code (SDC). The Final Master Plan can be extended to a
maximum 15-year timespan in accordance with SDC 5.13-135.B.9, but this extension is subject to a Type II or III
amendment process depending upon the size and complexity of the development area.
For the subject development site, the 2008 Final Master Plan was already amended once to provide for a three-year
extension (Case TYP115-00031). However, no development has occurred on the site during the past 10 years and
the prior extension expires on July 25, 2018. The applicant is now proposing to modify the overall timetable for
the Marcola Meadows Master Plan area by extending the expiration date to July 25, 2023 (the maximum 15 year
lifespan allowable by SDC 5.13-135.B.9). Additionally, the applicant is proposing to modify the sequencing and
configuration of development phasing, and to modify the zoning for the property. The nature of the proposed
modifications to the Master Plan, and the overall size and complexity of the development area (100+ acres), trigger
the requirement for a Type III process in accordance with SDC 5.13-135.B. Applicable criteria for the Final Master
Plan amendment are based substantially on the Preliminary Master Plan criteria of approval found in SDC 5.13-
125.
Staff has reviewed the 54 conditions of Master Plan approval that are exhaustively reviewed and analyzed in the
applicant’s project narrative (Attachment 2). At the time of its initial review and approval in 2008, the 100-acre
Marcola Meadows development area generated a host of conditions and restrictions to ensure the phasing and
sequencing of public and private improvements aligned with the developer’s and City’s vision of the site. Overall,
the conditions of approval are quite specific and prescriptive, and were intended to address a variety of existing and
anticipated development issues on the property. Because no development has occurred on the site since the original
Master Plan approval nearly 10 years ago, and changes to the City’s Development Code and development review
processes provide many of the regulatory “safeguards” identified in the conditions of approval, staff considers
many of the 54 approval conditions to be superfluous. It is the intent of the Final Master Plan to establish an
overall development template for a series of successive land use approvals including subdivision and site plan
review. According to the applicant’s proposed phasing plan, each planned development phase will have an
associated Public Improvement Project (PIP) for streets and infrastructure requiring detailed review and approval in
accordance with City standards in effect on the date this Final Master Plan Modification application was filed. For
these reasons, staff is recommending a streamlined list of conditions attributed to this modified Final Master Plan to
supersede and replace the original 54 conditions of approval.
Attachment 1, Page 2 of 13
811-18-000054-TYP3 Final Master Plan Modification Page 3 of 13
PROCEDURAL REQUIREMENTS
The Final Master Plan Modification procedures and criteria of approval in SDC 5.13-135 apply to modifications of
Final Master Plans and to Master Plans approved prior to adoption of Ordinance 6238 on March 3, 2009. The
Marcola Meadows Master Plan was approved on July 16, 2008. The proposed modifications are therefore subject
to the current requirements in SDC 5.13-135.
The applicant’s proposal consists of modifications described in SDC 5.13-135.B.2 through B.6, B.8, and B.9. No
other modifications that are not listed in SDC 5.13-135.B are proposed. SDC 5.13-135.B provides that these
modifications may be processed under a Type II review procedure, or under a Type III review procedure based on
the proposed based on the proposed size of the Master Plan site, the availability/capacity of public facilities, and/or
impacts to adjacent properties. The proposed modifications warrant Type III review due to the approximately 100-
acre size of the Marcola Meadows Master Plan site and the complexity of the proposed modifications as they relate
to the availability and capacity of public facilities and impacts on adjacent properties.
Because the Final Master Plan Modification proposes modifications that are subject to the standards and criteria for
Preliminary Master Plan approval under SDC 5.13-125 (see Criteria of Approval, below), the applicant must submit
the modified Final Master Plan for approval under SDC 5.13-131, 132, and 133 within one year of Final Master
Plan Modification approval. The modified Final Master Plan will be reviewed under Type I procedure according to
SDC 5.13-131.
NOTIFICATION AND WRITTEN COMMENTS
Notification of the May 15, 2018 Planning Commission public hearing was sent to all property owners and residents
within 300 feet of the outer boundary of the Marcola Meadows development site on April 23, 2018. Notification was
also published in the April 30 and May 7, 2018 editions of The Register Guard. Staff responded to several telephone
calls and emails inquiring about the proposal but no written comments were received.
CRITERIA OF APPROVAL
As stated in SDC 5.13-135.F, the criteria of approval for a Final Master Plan modification include compliance with
any applicable Preliminary Master Plan criteria of approval specified in SDC 5.13-125 and any other applicable
standard of the Springfield Development Code required to justify the proposed modification. Under SDC 5.13-
140.A.1, modifications to Final Master Plan that propose to extend the time line in excess of 10 years must comply
with the standards and criteria in effect at the time the modification application is filed. The applicant seeks to
extend the Marcola Meadows Master Plan in excess of 10 years past the original approval. Therefore, all proposed
modifications to the Final Master Plan and subsequent site plan and subdivision approvals must comply with the
applicable standards and criteria in the Springfield Development Code in effect on the date the Final Master Plan
Modification application was submitted (March 30, 2018), rather than those in effect at the time the original Master
Plan application was submitted in 2007.
A. Plan/Zone Consistency: The existing or proposed zoning shall be consistent with the Metro Plan
diagram and/or applicable text. In addition, the Preliminary Master Plan shall be in compliance with
applicable City Refinement Plan, Conceptual Development Plan or Plan District standards, policies
and/or diagram and maps.
Finding 1: The site is currently zoned Medium Density Residential (MDR), Mixed Use Commercial (MUC)
and Community Commercial (CC) in accordance with the Springfield Zoning Map, and is designated
Commercial and Nodal Development in accordance with the adopted Metro Plan diagram. The applicant is
proposing to amend the Final Master Plan area by rezoning approximately 19.3 acres of CC to MUC (Case
811-18-000053-TYP3).
Finding 2: Upon amendment of the Zoning Map initiated by Planning Action 811-18-000053-TYP3, the Final
Master Plan area would be zoned a combination of MDR and MUC with a Nodal Development Overlay applied
Attachment 1, Page 3 of 13
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to approximately 81.1 acres of the development area. The proposed Master Plan diagram and amended zoning
is consistent with the adopted Metro Plan diagram.
RECOMMENDED CONDITION OF APPROVAL:
1. Prior to approval of the modified Final Master Plan, the zoning of the property shall be amended as
initiated by Planning Action 811-18-000053-TYP3.
Conclusion: As conditioned herein, this proposal satisfies Criterion A.
B. Zoning District Standards: The Preliminary Master Plan shall be in compliance with applicable
standards of the specific zoning district and/or overlay district.
Finding 3: A Zoning Map Amendment has been submitted under separate cover (Case 811-18-000053-TYP3)
to change the zoning of the Master Plan area to remove the 19.3 acres of CC and rezone this area to MUC. The
proposed rezoning action will need to be approved prior to approval of the Final Master Plan amendment (see
Condition 1 above).
Finding 4: The Nodal Development Overlay District applies to 81.1 acres of the Master Plan area as generally
depicted on the adopted Metro Plan diagram and consistent with the City’s adopted Transportation System
Plan.
Finding 5: The applicant is proposing a mix of single-family detached and multi-family attached homes within
the Master Plan area. In accordance with SDC 3.2-210, attached and detached single family dwellings are
allowable in the MDR District. Attached single-family dwellings and multi-family dwellings are allowable in
the MUC District subject to limitations on overall ground floor area.
Finding 6: Approximately 54.8 acres of the Marcola Meadows development area is zoned MDR, or 42.2 net
acres after deducting area to be dedicated to the public. The applicant is proposing to develop 215 to 330
dwellings within the MDR zoning area and up to 500 dwelling units within the MUC zoning area, which is
located primarily in the central portion of the development site. In accordance with SDC 3.2-630.A.1.b, up to
40% of the ground floor area within the MUC District can be allocated to residential use.
Finding 7: The minimum residential density in MDR zoning is 14 dwelling units per net acre. The applicant’s
proposed Final Master Plan Modification would result in a net residential density of 5.1 to 7.8 dwelling units
per net acre within the MDR zone. The applicant proposes to allocate a portion of the units needed to meet the
MDR minimum density to the MUC zone. The minimum net residential density across the entire nodal
development/mixed-use area is 12 dwelling units per acre. The applicant’s proposal for 215 dwelling units in
the MDR zone and 500 units in the MUC zone meets this minimum net residential density.
Finding 8: The applicant also proposes an alternate residential development scheme that uses the Cluster
Subdivision development standards to provide lots that are less than the minimum lot size for the underlying
MDR zone. In the alternate development scheme, the applicant proposes to provide a minimum of 20% of the
residential development area as private open space according to SDC 3.2-230.H.
Finding 9: There are no other substantive changes proposed to the Master Plan that would affect its compliance
with the City’s applicable zoning and overlay districts.
RECOMMENDED CONDITION OF APPROVAL:
2. Prior to approval of the modified Final Master Plan, the applicant will record a deed restriction
stating that all the residential units needed to meet minimum residential density in the MDR zone (14
dwelling units per net acre of MDR zoning area) and in the mixed-use/nodal development area (12
Attachment 1, Page 4 of 13
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dwelling units per net acre overall) will be constructed prior to or concurrently with any commercial
development on the Master Plan site.
Conclusion: As conditioned herein, this proposal satisfies Criterion B.
C. Transportation System Capacity: With the addition of traffic from the proposed development, there is
either sufficient capacity in the City’s existing transportation system to accommodate the development
proposed in all future phases or there will be adequate capacity by the time each phase of development is
completed. Adopted State and/or local mobility standards, as applicable, shall be used to determine
transportation system capacity. The Preliminary Master Plan shall also comply with any conditions of
approval from a Metro Plan diagram and/or text amendment regarding transportation and all
applicable transportation standards specified in SDC Chapter 4.
Finding 10: Section 4.2-105.G.2 of the SDC requires that whenever a proposed land division or development
will increase traffic on the City street system and that development has any unimproved street frontage abutting
a fully improved street, that street frontage shall be fully improved to City specifications.
Finding 11: The applicant has provided street cross-sections and layouts that allow for sufficient access and
connectivity across the proposed Master Plan area and surrounding public street frontages at full build-out.
Finding 12: Construction of public streets and related improvements is reviewed and approved in conjunction
with a Public Improvement Permit (PIP) process and in accordance with the requirements of the City’s
Engineering Design Standards and Procedures Manual (EDSPM).
Finding 13: A Traffic Impact Study (TIS) was prepared by Access Engineering Inc. for the Marcola Meadows
Master Plan area in 2007. Staff reviewed and conditionally accepted the findings of the TIS at the time of
original Master Plan approval in July 2008. The applicant prepared and submitted a revised Traffic Impact
Analysis (TIA) in support of the proposed Final Master Plan Modification and Zoning Map Amendment. The
TIA addresses the traffic impacts associated with the phasing, zoning, and Master Plan modifications in relation
to the existing and planned infrastructure. City staff concurs with the findings and conclusions in the revised
TIA.
Finding 14: The 2007 zoning map amendment associated with the original Master Plan included a trip cap as a
demand management strategy to meet Goal 12 requirements thereby ensuring that the zone change would not
result in a significant impact to transportation facilities. The trip cap of 1,430 PM peak hour net primary
external non-bypass trips remains applicable to the entire Master Plan site and is satisfactorily addressed in the
revised TIA.
Finding 15: The applicant is requesting a Mixed Use District parking reduction without a variance in
accordance with provisions of SDC 4.6-125.G.3: the Director may reduce the minimum residential parking
standard when it is demonstrated that proposed housing is “along a frequent service transit line.” The City’s
Development Code does not provide a definition for “frequent service transit line,” but staff interprets this
phrase to mean that the development area containing proposed housing directly abuts a street identified as part
of the existing or proposed Frequent Transit Network shown on Figure 9 of the Springfield Transportation
System Plan (TSP) or directly abuts another transit line that provides a minimum of 15-minute transit frequency
during peak travel times. The proposed Mixed Use Commercial zoning directly abuts Marcola Road between
19th Street and 31st Street, which is identified as part of the proposed frequent transit network on Figure 9 of the
Springfield TSP. The Director in consultation with City staff has determined that the parking reduction is
therefore appropriate and acceptable.
Attachment 1, Page 5 of 13
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Finding 16: The revised (2018) TIA groups the proposed nine (9) construction phases into three primary
phases for the purpose of quantifying traffic impacts internally and to surrounding areas. The three phases
described in the applicant’s TIA correspond with the following construction phases depicted on the proposed
Master Plan diagram (Sheets 7 and 7A):
TIA Phase I – construction phases 1A, 1B, 2A, 2B, 4 & 5;
TIA Phase II – construction phases 3A, 3B & 6; and
TIA Phase III – construction phases 7, 8 & 9.
The applicant’s revised TIA finds that the roundabout improvements on Marcola Road need to be completed
concurrent with TIA Phase II, and the remainder of the Marcola Road improvements concurrent with TIA
Phase III. As submitted, the Phasing Plan Sheet does not comport with the construction phasing analyzed
under the TIA and must be revised accordingly with the Final Master Plan submittal.
Finding 17: The applicant is not proposing to significantly modify the configuration of the planned public
street system as originally approved in 2008, or the anticipated traffic patterns generated by the development
area.
Finding 18: The proposed zone change from CC to MUC and the removal of a planned “big box” home
improvement center from the Master Plan area has a net reduction in anticipated vehicle trips within the Master
Plan area. The proposed Final Master Plan Modification retains the existing trip cap and the connectivity of
interior streets established by the existing Master Plan. Therefore, the proposed modifications to the Final
Master Plan do not exceed the capacity of existing and planned public streets serving the Marcola Meadows
development area.
RECOMMENDED CONDITIONS OF APPROVAL:
3. Prior to approval of the modified Final Master Plan, the applicant shall provide an updated
construction phasing plan consistent with City requirements and the findings of the revised TIA,
including but not limited to ensuring that Marcola Road improvements are constructed prior to or
concurrently with introduction of additional traffic generated by the Master Plan development area.
4. The developer(s) shall design and construct each phase’s public road system using the City’s Public
Improvement Permit (PIP) process and in accordance with the requirements of the City’s adopted
EDSPM in effect at the time of PIP submittal.
Conclusion: As conditioned herein, this proposal satisfies Criterion C.
D. Parking: Parking areas have been designed to: facilitate traffic safety and avoid congestion; provide
bicycle and pedestrian connectivity within the property and to nearby transit stops and public areas.
The Preliminary Master Plan shall also comply with all applicable vehicular and bicycle parking
standards specified in SDC Chapter 4.
Finding 19: The applicant is not proposing to significantly modify the vehicle and pedestrian circulation
patterns contemplated in the original Marcola Meadows Master Plan. Additionally, the applicant is not
proposing to modify any off-site vehicle and pedestrian facilities. The proposed Master Plan provides for
connectivity of the public street system internal to the site and to perimeter public streets, including Marcola
Road and 31st Street. Off-street pathway connectivity is proposed to the nearby EWEB pathway corridor, along
the reconfigured stormwater channel internal to the development area, and to the existing residential
neighborhood to the west.
Finding 20: Vehicle and bicycle parking for multi-family residential and commercial developments will be
reviewed and approved incrementally as detailed site plans are advanced for construction Phases 4 through 9.
As residential and commercial development advances on the Marcola Meadows site, Lane Transit District
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(LTD) will have the opportunity to review and potentially modify the location and frequency of transit service
along the Marcola Road corridor.
Conclusion: This proposal satisfies Criterion D.
E. Ingress-Egress: Ingress-egress points have been designed to: facilitate traffic safety and avoid
congestion; provide bicycle and pedestrian connectivity within the property and to adjacent residential
areas, transit stops, neighborhood activity centers, and commercial, industrial and public areas; and
minimize driveways on arterial and collector streets as specified in this Code or other applicable City
and State regulations. The Preliminary Master Plan shall also comply with all applicable ingress/egress
standards specified in SDC Chapter 4.
Finding 21: The applicant is not proposing to significantly modify the locations of identified public street
intersections and principal ingress-egress points to serve the Marcola Meadows development area. The primary
public street intersections established in the original Marcola Meadows Master Plan include a roundabout on
Marcola Road along the southwest edge of the development area, an intersection on 28th Street at Pierce
Parkway, intersections on 31st Street at V and W Streets, and a commercial access driveway onto Marcola Road
between the future roundabout and the 28th Street intersection. The proposed Master Plan also contemplates a
new street intersection on 31st Street at U Street to improve connectivity with the adjacent neighborhood to the
east. The proposed Final Master Plan diagram meets City requirements for separation spacing of street
intersections on collector streets, and minimizing the number of intersections on a major collector street
(Marcola Road).
Conclusion: This proposal satisfies Criterion E.
F. Availability of Public Utilities: Existing public utilities, including, but not limited to, water, electricity,
wastewater facilities and stormwater management facilities either have sufficient capacity to support the
proposed development in all future phases adequately, or there will be sufficient capacity available by
the time each phase of development is completed. The Public Works Director or appropriate utility
provider shall determine capacity issues. The Preliminary Master Plan shall also comply with applicable
utility standards specified in SDC Chapters 4 and 5.
Sanitary Sewer
Finding 22: Section 4.3-105.A of the SDC requires that sanitary sewers shall be installed to serve each new
development and to connect developments to existing mains. Additionally, installation of sanitary sewers shall
provide sufficient access for maintenance activities.
Finding 23: The proposed Final Master Plan Modification shows a conceptual layout for a public sanitary
sewer system that appears to serve all lots within the development area and with sufficient capacity for the
higher residential density depicted on the applicant’s alternate development plan. The proposed sanitary sewer
system will connect to the existing public trunk sewer line that runs east-west through the site and to the 31st
Street sanitary sewer main that has adequate capacity for the proposed development.
Finding 24: Section 2.02.8 of the City’s EDSPM states that sanitary sewers shall be located in the public right-
of-way at street centerline or within 5 feet of the centerline of the street. Public sanitary sewers in easements
shall be allowed only after all reasonable attempts to place the mains in public rights-of-way have been
exhausted.
Finding 25: Construction of public sanitary sewer mains is reviewed and approved in conjunction with a Public
Improvement Permit (PIP) process.
Attachment 1, Page 7 of 13
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RECOMMENDED CONDITION OF APPROVAL:
5. The developer(s) shall design and build each phase’s public sanitary sewer system using the City’s
PIP process and in accordance with the requirements of the City’s adopted EDSPM in effect at the
time of PIP submittal.
Stormwater Management
Quantity
Finding 26: Section 4.3-110.B of the SDC requires that the Approval Authority shall grant development
approval only where adequate public and/or private stormwater management systems provisions have been
made as determined by the Development & Public Works Director, consistent with the City’s adopted EDSPM.
Finding 27: Section 4.3-110.C of the SDC states that a stormwater management system shall accommodate
potential runoff from its entire upstream drainage area, whether inside or outside of the development site.
Finding 28: Section 4.3-110.D of the SDC requires that runoff from a development shall be directed to an
approved stormwater management system with sufficient capacity to accept the discharge.
Finding 29: Section 4.3-110.E of the SDC requires new developments to employ drainage management
practices that minimize the amount and rate of surface water runoff into receiving streams and that promote
water quality.
Finding 30: To comply with SDC 4.3-110.D & E, most stormwater runoff from the site will be discharged into
an existing drainage channel that crosses the site from east to west – a drainage feature that is commonly
referred to as the “Pierce Ditch”. A smaller basin on the northern edge of the site will discharge to the existing
stormwater system adjacent to Pierce Park.
Finding 31: The existing drainage channel (Pierce Ditch) is proposed to be relocated to the north and
reconfigured to more closely resemble and function as a natural channel than the existing linear ditch. The
entire existing ditch and the proposed reconfigured channel are (and will be) classified as a wetland in
accordance Oregon Department of State Lands (DSL) criteria. All work within the wetland areas require
appropriate permits from DSL, the US Army Corps of Engineers, and (potentially) the Oregon Department of
Environmental Quality (DEQ).
Finding 32: The applicant has prepared and submitted a comprehensive stormwater drainage report which
provides for an acceptable drainage management plan for the entire Master Plan area.
Finding 33: Current City policy is for all stormwater management facilities that receive or convey public
runoff to be transferred to City of Springfield ownership upon completion and acceptance of a PIP. In the
applicant’s alternate design, which proposes cluster development to increase dwelling unit density, the
developer(s) rely on most (if not all) of the naturalized area surrounding the reconfigured conveyance channel
to meet the common open space requirements of the City’s Development Code. If the developer(s) choose the
alternate design and advance a series of cluster subdivisions identifying common open space along the central
stormwater drainage facility, the ownership and maintenance of the conveyance channel and detention ponds
will need to be reconciled to the satisfaction of the City.
Quality
Finding 34: Under Federal regulation of the Clean Water Act (CWA), Endangered Species Act (ESA), and
National Pollutant Discharge Elimination System (NPDES), the City of Springfield is required to obtain, and
has applied for, a Municipal Separate Storm Sewer System (MS4) permit. A provision of this permit requires
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the City to demonstrate efforts to reduce the pollution in urban stormwater to the Maximum Extent Practicable
(MEP).
Finding 35: Federal and Oregon Department of Environmental Quality (DEQ) rules require the City’s MS4
plan to address six “Minimum Control Measures”. Minimum Control Measure 5, “Post-Construction
Stormwater Management for New Development and Redevelopment”, applies to the proposed development.
Finding 36: Minimum Control Measure 5 requires the City of Springfield to develop, implement and enforce
a program to ensure the reduction of pollutants in stormwater runoff to the MEP. The City also must develop
and implement strategies that include a combination of structural or non-structural Best Management
Practices (BMPs) appropriate for the community.
Finding 37: Minimum Control Measure 5 requires the City of Springfield to use an ordinance or other
regulatory mechanism to address post-construction runoff from new and re-development projects to the extent
allowable under State law. Regulatory mechanisms used by the City include the SDC, the City’s EDSPM, and
the Stormwater Facilities Master Plan (SFMP).
Finding 38: Section 3.02 of the City’s EDSPM states the Development & Public Works Department will
accept, as interim design standards for stormwater quality, water quality facilities designed pursuant to the
policies and procedures of the City’s EDSPM and the City of Eugene Stormwater Management Manual.
Finding 39: Sections 3.02.5 and 3.02.6 of the City’s EDSPM states all public and private development and
redevelopment projects shall employ a system of one or more post-developed BMPs that in combination are
designed to achieve at least a 70% reduction in the total suspended solids in the runoff generated by that
development. Section 3.03.4.E of the manual requires a minimum of 50% of the non-building rooftop
impervious area on a site shall be treated for stormwater quality improvement using vegetative methods and
100% of the area shall be pre-treated.
Finding 40: To meet the requirements of the City’s MS4 permit, the SDC, and the City’s EDSPM, the applicant
has proposed a series of drainage ponds adjacent to and connected with the central stormwater conveyance
channel. The detention ponds will be vegetated and metered to provide full treatment of the runoff from both
the public streets and private home lots prior to discharge into the central conveyance channel.
Finding 41: Current City policy is for all stormwater facilities that receive or convey public stormwater
runoff to be transferred to City ownership upon completion and acceptance of the PIP, at which time the City
is responsible for the ongoing maintenance and functionality of the treatment ponds.
Utilities and Easements
Finding 42: The applicant is not proposing to significantly modify the public and private utility scheme for the
Final Master Plan area. The existing public utility infrastructure on the periphery of the Marcola Meadows
development area has adequate capacity to serve the anticipated development on the site. As development
progresses in the Final Master Plan area, the developer will be responsible for extending underground water,
sanitary sewer, storm sewer, electrical, telecommunication and natural gas lines from connection points within
and adjacent to the site.
Finding 43: Section 4.3-130.A of the SDC requires each development area to be provided with a water system
having sufficiently sized mains and lesser lines to furnish adequate supply to the development and sufficient
access for maintenance. Springfield Utility Board (SUB) coordinates the design of the water system within
Springfield city limits.
Finding 44: Section 4.3-140.A of the SDC requires applicants proposing developments to make arrangements
with the City and each utility provider for the dedication of utility easements necessary to fully service the
development site or land beyond the development area.
Attachment 1, Page 9 of 13
811-18-000054-TYP3 Final Master Plan Modification Page 10 of 13
RECOMMENDED CONDITIONS OF APPROVAL:
6. Prior to approval of Phases 1B, 2B, 3A and/or 7 of the Final Master Plan, the applicant shall obtain
all required state and federal permits for work within delineated wetlands and provide evidence
thereof to the City.
7. The developer(s) shall design and build each phase’s public stormwater system through the City’s
PIP process in accordance with the approved drainage report and meeting the requirements of the
adopted EDSPM in effect at the time of submittal. The final alignment and configuration of the
stormwater mains, laterals, detention ponds, and conveyance channels shall be determined through
the PIP process.
8. To ensure a fully functioning water quality system that is maintainable, the developer(s) shall install
a water quality manhole of a swirl/vortex-type design that provides sufficient pre-treatment per the
Washington State Department of Ecology “Technology Assessment Protocol – Ecology” (T.A.P.E.)
list prior to discharge to the public treatment pond. The developer shall design and install the water
quality manholes as part of the PIP construction for each construction phase.
9. As part of the development review and approval process for each construction phase, the
developer(s) shall provide sufficient utility easements as determined at that time for all required
utilities. Current City policy is for a 7-foot wide public utility easement (PUE) along both sides of all
public street rights-of-way.
10. As part of the PIP review and approval process for each construction phase, the developer(s) shall
provide utility plans with sufficient detail to provide for all utility access, ADA facilities, and
required landscaping along the frontages of all public street rights-of-way.
Conclusion: As conditioned herein, this proposal satisfies Criterion F.
G. Protection of Physical Features: Physical features, including, but not limited to slopes 15 percent or
greater with unstable soil or geologic conditions, areas with susceptibility to flooding, significant clusters
of trees and shrubs, watercourses shown on the Water Quality Limited Watercourses (WQLW) Map and
their associated riparian areas, wetlands, rock outcroppings and open spaces and areas of historic and/or
archaeological significance as may be specified in Section 3.3-900 or ORS 97.740-760, 358.905-955 and
390.235-240 shall be protected as specified in this Code or in State or Federal law. The Preliminary
Master Plan shall also comply with applicable physical feature protection standards specified in SDC
Chapter 4.
Finding 45: The property is currently vacant and the only notable physical feature on the site is the existing,
linear drainage channel (Pierce Ditch) that bisects the entire Master Plan area from east to west. At the western
boundary of the Master Plan area, the channel turns 90° south and runs along the southwest edge of the site to a
connection point with the piped public stormwater system in Marcola Road. As previously stated herein, the
drainage channel is part of the City’s mapped stormwater system and is identified on the local wetland
inventory. The proposed Master Plan contemplates realigning and enhancing the existing linear channel to
serve as a neighborhood open space feature and also to perform an enhanced stormwater management function.
Reconfiguration of the drainage channel will need to be done with appropriate permits from state and federal
agencies, including but not limited to the Oregon Department of State Lands and the US Army Corps of
Engineers. The applicant is not proposing to significantly relocate or realign the drainage channel beyond what
was shown in the original 2008 Master Plan, and therefore the proposed modification will not change the status
of natural and historic features on the site.
Conclusion: This proposal satisfies Criterion G.
Attachment 1, Page 10 of 13
811-18-000054-TYP3 Final Master Plan Modification Page 11 of 13
H. Phasing Plan: The Phasing Plan shall: demonstrate that the construction of required public facilities
shall occur in a logical sequence, either in conjunction with, or prior to each phase, or that there are
appropriate financial guarantees as specified in Subsection 5.13-120.M to ensure the phased public
facilities construction will occur.
Finding 46: The applicant is proposing to significantly modify the phasing plan and sequencing approved with
the Marcola Meadows Master Plan in 2008. The original Master Plan contemplated four phases of
development, starting with an initial phase in the southwest corner of the property. The initial phase included a
roundabout and improvements to the Marcola Road frontage, a segment of the primary collector street
extending northward from the roundabout on Marcola Road, and commercial parcels fronting onto Marcola
Road and the primary collector street. A large standalone commercial parcel intended for a home improvement
center was part of the initial development phase. Following the initial phase, the sequencing of development
was anticipated to progress generally from the southwest corner of the property to the northeast corner.
Finding 47: The current proposal is to change the phasing from four to nine construction phases, and to change
the initial phase from the southwest corner to the northeast corner of the property. Development would
progress generally from the northeast corner of the property to the west and south. The southern edge of the
property, including most of the Marcola Road frontage improvements, is proposed to be in the final
development phases.
Finding 48: In accordance with SDC 5.13-133.C.1, Final Master Plans are valid for a period of not more than
seven (7) years after date of recordation unless modified or extended. The Marcola Meadows Master Plan was
recorded July 25, 2008 and was initially set to expire on July 25, 2015. The applicant subsequently requested
and was granted a three year extension pursuant to SDC 5.13-135.A.3, which provides for an expiration date of
July 25, 2018 (Case TYP115-00031).
Finding 49: In accordance with SDC 5.13-135.B.9, the applicant is requesting a Final Master Plan
Modification to extend the timeline a maximum of 15 years from the date of final approval (to July 25, 2023).
Because of the size and complexity of the development area, and the fact the applicant is requesting the
maximum time frame for Final Master Plan eligibility, the subject request is being processed as a Type III land
use application.
Finding 50: The Final Master Plan was recorded at Lane County Deeds & Records on July 25, 2008, and a
notification that the timeline for Master Plan expiration was extended to July 25, 2018 was recorded against the
property as document #2015-039630. Should the request for Final Master Plan Modification be approved by
the Springfield Planning Commission, the applicant will need to record the following documents at Lane
County Deeds & Records: the modified Final Master Plan document and plans; any conditions of approval;
any covenants, conditions and restrictions (CC&Rs) applicable to the property; and a notification of Final
Master Plan extension.
Finding 51: Staff has reviewed the 54 conditions of Final Master Plan approval currently recorded against the
property and the Deed Restriction that implements a list of 20 CC&Rs recorded against the property. At the
time of initial staff review in 2007, the Villages at Marcola Meadows Master Plan application was submitted as
an expedited application which required the City to quickly consider and implement a number of contingencies
for the anticipated future land use applications and development of the property. As a result, the Final Master
Plan conditions of approval and CC&Rs are far more exhaustive and prescriptive than “standard” conditions
typically associated with the City’s subdivision and site plan review processes. Staff observes that the
extensive list of conditions and covenants attached to the property (conditions that could be just as effectively
applied through a series of land use applications) presents a significant encumbrance to development of the
property and could be a key reason why the site has remained vacant for the past decade.
Finding 52: It is staff’s recommendation that, based on the anticipated phasing and sequencing of
development; the multiple opportunities for staff, referral agencies, stakeholders and the public to review
successive development applications for subdivision, site plan review, and the construction of public
Attachment 1, Page 11 of 13
811-18-000054-TYP3 Final Master Plan Modification Page 12 of 13
infrastructure; and the revisions to the City’s Development Code since 2008 to account for changes in
regulatory requirements and development review procedures, the 54 Conditions of Approval recorded with the
Final Master Plan as Document #2008-043041 and the 20 CC&Rs recorded as Document #2008-039321 should
be superseded and nullified upon approval of this Final Master Plan Modification as initiated by Planning
Action 811-18-000054-TYP3.
RECOMMENDED CONDITIONS OF APPROVAL:
11. The applicant shall record the modified Final Master Plan document, revised plans, and conditions
of approval against the property at Lane County Deeds & Records and provide evidence thereof to
the City.
12. The applicant shall record a notification of Final Master Plan extension against the property at Lane
County Deeds & Records and provide evidence thereof to the City. The timeline extension is granted
to July 25, 2023 at which time the Final Master Plan expires.
13. The modified Final Master Plan document, revised plans, and conditions of approval arising from
Planning Action 811-18-000054-TYP3 shall supersede the prior Master Plan recorded as Document
#2008-043041 and the CC&Rs recorded as Document #2008-039321.
Conclusion: As conditioned herein, this proposal satisfies Criterion H.
I. Adjacent Use Protection: The proposed Preliminary Master Plan contains design elements including,
but not limited to landscaping/screening, parking/traffic management, and multi-modal transportation
that limit and/or mitigate identified conflicts between the site and adjacent uses.
Finding 53: The applicant is not proposing to modify the provisions for protection of adjacent uses with this
application. The Marcola Meadows Master Plan currently provides for extension of public streets and utilities;
provision of vehicle and pedestrian circulation; parking and cross-access between commercial lots within the
development area; reconfiguration of the surface stormwater drainage channel; landscaping and screening of
parking lot areas; and improvements to perimeter streets including Marcola Road and 31st Street. Based on the
design of the neighborhood and provisions of the modified Master Plan, it is expected that the development
area will remain compatible with existing residential and commercial development in the vicinity.
Conclusion: This proposal satisfies Criterion I.
SUMMARY OF RECOMMENDED CONDITIONS OF APPROVAL:
1. Prior to approval of the modified Final Master Plan, the zoning of the property shall be amended as
initiated by Planning Action 811-18-000053-TYP3.
2. Prior to approval of the modified Final Master Plan, the applicant will record a deed restriction stating
that all the residential units needed to meet minimum residential density in the MDR zone (14 dwelling
units per net acre of MDR zoning area) and in the mixed-use/nodal development area (12 dwelling units
per net acre overall) will be constructed prior to or concurrently with any commercial development in
Marcola Meadows.
3. Prior to approval of the modified Final Master Plan, the applicant shall provide an updated construction
phasing plan consistent with City requirements and the findings of the revised TIA, including but not
limited to ensuring that Marcola Road improvements are constructed prior to or concurrently with
introduction of additional traffic generated by the Master Plan development area.
Attachment 1, Page 12 of 13
811-18-000054-TYP3 Final Master Plan Modification Page 13 of 13
4. The developer(s) shall design and construct each phase’s public road system using the City’s Public
Improvement Permit (PIP) process and in accordance with the requirements of the City’s adopted
EDSPM in effect at the time of PIP submittal.
5. The developer(s) shall design and build each phase’s public sanitary sewer system using the City’s PIP
process and in accordance with the requirements of the City’s adopted EDSPM in effect at the time of
PIP submittal.
6. Prior to approval of Phases 1B, 2B, 3A and/or 7 of the Final Master Plan, the applicant shall obtain all
required state and federal permits for work within delineated wetlands and provide evidence thereof to
the City.
7. The developer(s) shall design and build each phase’s public stormwater system through the City’s PIP
process in accordance with the approved drainage report and meeting the requirements of the adopted
EDSPM in effect at the time of submittal. The final alignment and configuration of the stormwater
mains, laterals, detention ponds, and conveyance channels shall be determined through the PIP process.
8. To ensure a fully functioning water quality system that is maintainable, the developer(s) shall install a
water quality manhole of a swirl/vortex-type design that provides sufficient pre-treatment per the
Washington State Department of Ecology “Technology Assessment Protocol – Ecology” (T.A.P.E.) list
prior to discharge to the public treatment pond. The developer shall design and install the water quality
manholes as part of the PIP construction for each construction phase.
9. As part of the development review and approval process for each construction phase, the developer(s)
shall provide sufficient utility easements as determined at that time for all required utilities. Current
City policy is for a 7-foot wide public utility easement (PUE) along both sides of all public street rights-
of-way.
10. As part of the PIP review and approval process for each construction phase, the developer(s) shall
provide utility plans with sufficient detail to provide for all utility access, ADA facilities, and required
landscaping along the frontages of all public street rights-of-way.
11. The applicant shall record the modified Final Master Plan document, revised plans, and conditions of
approval against the property at Lane County Deeds & Records and provide evidence thereof to the
City.
12. The applicant shall record a notification of Final Master Plan extension against the property at Lane
County Deeds & Records and provide evidence thereof to the City. The timeline extension is granted to
July 25, 2023 at which time the Final Master Plan expires.
13. The modified Final Master Plan document, revised plans, and conditions of approval arising from
Planning Action 811-18-000054-TYP3 shall supersede the prior Master Plan recorded as Document
#2008-043041 and the CC&Rs recorded as Document #2008-039321.
PREPARED BY:
Andy Limbird
Andy Limbird
Senior Planner
Attachment 1, Page 13 of 13
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April 4, 2018
THE VILLAGES AT MARCOLA MEADOWS
Final Master Plan Modification
Map 17-02-30-00, Lot 1800
Map 17-03-25-11, Lot 2300
SUPPLEMENTAL WRITTEN STATEMENT
This Supplemental Written Statement is submitted as an addition to the Final Master Plan Modification
application (Case No. 811-18-000054-TYP3) to be processed as part of the initial application.
I. LAND USE REQUEST
COAs, CC&Rs and Attachments
CC&Rs
The following paragraph is to be inserted into Attachment 4 CC&Rs on Page 4-1 immediately before
Requirements of Master Plan Approval.
Termination of Original Declaration:
A Declaration of Covenants, Conditions and Restrictions of Marcola Meadows dated as of
May 12, 2008 (the "Original Declaration") was executed by SC Springfield, LLC and recorded
on July 3, 2008 at Instrument No. 2008-039321 in the records of the Division of Chief Deputy
Clerk Lane County Deeds and Records with regard to the Property. By the recordation
hereof, the Original Declaration is terminated and of no further force and effect.
If you have any questions about this supplemental written statement, please do not hesitate to
contact Rick Satre at (541) 686-4540 or email rick@schirmersatre.com.
Sincerely,
Richard M. Satre
Richard M. Satre, AICP, ASLA, CSI, Principal
Schirmer Satre Group
Attachment 2, Page 10 of 129
April 9, 2018
THE VILLAGES AT MARCOLA MEADOWS
Final Master Plan Modification
Map 17-02-30-00, Lot 1800
Map 17-03-25-11, Lot 2300
SUPPLEMENTAL WRITTEN STATEMENT
This Supplemental Written Statement is submitted as an addition to the Final Master Plan Modification
application (Case No. 811-18-000054-TYP3) to be processed as part of the initial application.
I. LAND USE REQUEST
COAs, CC&Rs and Attachments
Attachments
The following paragraph is to be inserted into Attachment 8 Accessways on Page 8-1 immediately
before AGREEMENTS.
Termination of Original Revocable License Agreement:
The Villages at Marcola Meadows Final Master Plan dated July 3, 2008, which included the
original Attachment 8 Accessways (the "Original Revocable License Agreement"), dated July
3, 2008, was recorded on July 25, 2008 at Instrument No. 2008-043041 in the records of the
Division of Chief Deputy Clerk Lane County Deeds and Records with regard to the Property.
With the recordation of The Villages at Marcola Meadows Final Master Plan Modification
hereof (Case No. 811-18-000054-TYP3), the Original Revocable License Agreement is
terminated and of no further force and effect.
If you have any questions about this supplemental written statement, please do not hesitate to
contact Rick Satre at (541) 686-4540 or email rick@schirmersatre.com.
Sincerely,
Richard M. Satre
Richard M. Satre, AICP, ASLA, CSI, Principal
Schirmer Satre Group
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811-18-000054-TYP3 – PROPOSED FINAL MASTER PLAN MODIFICATION FOR MARCOLA MEADOWS
MAP 17-02-30-00, TAX LOT 1800 & MAP 17-03-25-11, TAX LOT 2300
SITE CONTEXT MAP
SITE 31st Street 28th Street Marcola Road
Mt. Vernon Rd
U Street
Corral Drive V Street
W Street
Pierce Parkway
22nd Street Attachment 3, Page 1 of 1
BEFORE THE PLANNING COMMISSION
OF THE
CITY OF SPRINGFIELD, OREGON
REQUEST FOR FINAL MASTER PLAN + CASE NO. 811-18-000054-TYP3
MODIFICATION + FINDINGS, CONCLUSIONS,
+ AND ORDER
NATURE OF THE APPLICATION
Request to modify the Final Master Plan for Marcola Meadows to change the sequence and phasing of
development from four to nine phases; extend the timeline for the Final Master Plan to July 25, 2023, and
amend the zoning for a 19.3-acre portion of the development area from Community Commercial (CC) to
Mixed Use Commercial (MUC). The subject property is a 100-acre vacant property in north Springfield at
the northwest corner of 28th Street and Marcola Road, Map 17-02-30-00, Tax Lot 1800 & Map 17-03-25-
11, Tax Lot 2300.
1. On March 30, 2018 the following application for a Final Master Plan Modification was accepted:
Revise the sequence and location of development phasing; restore the MUC zoning for a 19.3-
acre parcel within the development area; and extend the Final Master Plan timeline to July 25,
2023, Case Number 811-18-000054-TYP3, Rick Satre, Schirmer Satre Group on behalf of
MidFirst Bank, applicant. The area requested for Final Master Plan Modification is generally
depicted and more particularly described in Attachment 1 to this Final Order.
2. The application was submitted in accordance with Section 5.4-105 of the Springfield
Development Code. Timely and sufficient notice of the public hearing, pursuant to Section 5.2-
115 of the Springfield Development Code, was provided.
3. On May 15, 2018 a public hearing on the Final Master Plan Modification request was held. The
Development and Public Works Department staff notes including criteria of approval, findings and
recommendations, together with the testimony and submittals of the persons testifying at that
hearing have been considered and are part of the record of this proceeding.
CONCLUSION
On the basis of this record, the requested Final Master Plan Modification application is consistent with
the criteria of Section 5.13-125 of the Springfield Development Code. This general finding is supported
by the specific findings of fact and conclusions in the staff report (Exhibit A) attached hereto.
ORDER
It is ORDERED by the Planning Commission of Springfield that Case Number 811-18-000054-TYP3,
Final Master Plan Modification Request, be approved. This ORDER was presented to and approved by
the Planning Commission on May 15, 2018.
_______________________________
Planning Commission Chairperson
ATTEST
AYES:
NOES:
ABSENT:
ABSTAIN:
Attachment 4, Page 1 of 4
ATTACHMENT 1
28th Street 31st Street Pierce Parkway
SITE
W Street
V Street
U Street
Attachment 4, Page 2 of 4
LEGAL DESCRIPTION
Attachment 4, Page 3 of 4
Attachment 4, Page 4 of 4